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GETParliament
HOW YOUR FEDERAL PARLIAMENT WORKS
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© Commonwealth of Australia 2015
This publication is copyright. Apart from any use permitted under the
Copyright Act 1968 and subsequent amendments, no part may be reproduced,
stored in a retrieval system or transmitted by any means or process whatsoever
without the prior written permission of the author.
First published February 2010
Revised reprint June 2010
Revised reprint January 2011
Revised reprint October 2011
Revised reprint August 2012
Revised reprint February 2014
Revised reprint May 2015
ISBN 978-1-74229-206-9
ContentsFederation 2
The Australian Constitution 4
Three levels of law-making 6
Electing members of parliament 8
The houses of Parliament 10
Parliament at work 12
> Representation 12
> Forming government 13
> Making laws 14
> Accountability 16
Get involved 18
Get more! 20
Federation
Before 1901, Australia was a
collection of British colonies. It did not
exist as a nation
A cartoon published in The Argus newspaper in 1898 urged
colonists to federate
Australia unitesAustralia became a nation on 1 January 1901 when the six colonies
(New South Wales, Victoria, Queensland, South Australia, Western
Australia and Tasmania) united to form the Commonwealth of Australia.
This historical process is known as federation.
Before 1901 Australia did not exist as a nation. It was a collection of
six British colonies which were partly self-governing, but under the
law-making power of the British Parliament. The colonies were like six
separate countries. Each had its own government and laws, its own
defence force, issued its own stamps and collected tariffs (taxes) on goods
that crossed its borders. The colonies even had different railway systems.
Federation feverIn the 1880s and 1890s popular support for
federation grew as people realised the colonies would
be stronger and more efficient if they united. It was
felt a national government was needed to deal with
issues such as trade, foreign policy, immigration
and defence. Although most colonists were of
British descent and looked to Britain as the ‘mother
country’, they had started to see themselves as
belonging to one separate nation.
GET THIS...Western Australia was the last colony to join the federation. Its government was concerned that federation would give New South Wales and Victoria an advantage over less powerful states. Western Australia agreed to federate in a referendum held on 31 July 1900, two weeks after the Constitution became law in Britain.
GET PARLIAMENT2
Children celebrating federation, Melbourne 1901
Nationhood, Centennial Park, Sydney
Path to federationBefore the colonies could join together they needed
a constitution to set out the rules for how Australia
would be run.
The Australian Constitution was written at a series of
conventions (meetings) attended by representatives
from the colonies. The first convention met in Sydney
in 1891. It produced a draft that became the basis
for the Constitution. The final draft was completed
at three meetings held in Adelaide, Sydney and
Melbourne in 1897 and early 1898.
The Constitution was then approved by a vote of the
people in referendums held in each colony between
June 1899 and July 1900.
The Constitution had to be agreed to by the British
Parliament before federation could proceed.
A delegation that included Sir Edmund Barton
(who became Australia’s first Prime Minister)
travelled to London to present the Constitution
to the British Parliament.
The Commonwealth of Australia Constitution Act
was passed by the British Parliament in July
1900. It allowed the six colonies to become
Australian states and created the federal, or
Commonwealth, Parliament.
This cartoon from British magazine Punch shows that even in Britain
federation had popular support. The umpire tells the Australian
cricket team: “You’ve done jolly well by combination in the cricket
field, and now you’re going to federate at home. Bravo, boys!”
One people, one destiny The Commonwealth of Australia was declared on 1 January 1901 at a ceremony held in Centennial Park in
Sydney. During the ceremony the Governor-General, Lord Hopetoun, was sworn in. Australia’s first Prime
Minister and federal ministers took the oath of office.
Australians welcomed nationhood. Up to 500 000 people lined the route of the federation parade that
travelled from the Domain to Centennial Park. About 100 000 spectators witnessed the ceremony that followed.
Australians were ready to unite under the slogan ‘one people, one flag, one destiny’.
FEDERATION 3
The Australian Constitution
Constitution Act. An Act of the British
Parliament was needed to create the
Commonwealth of Australia
GET PARLIAMENT
Birth certificate of a nationThe Australian Constitution provides the rules for the governance of Australia.
Described as the birth certificate of the nation, the Constitution is made up of
eight chapters and 128 sections.
It united the six self-governing British colonies as separate states, within the
Commonwealth of Australia. While each state kept its own parliament, the
Constitution also created a Commonwealth (federal) Parliament. This sharing
of responsibilities between the federal Parliament and state parliaments gave
Australia a ‘federal’ system of government.
The Constitution also describes what the federal Parliament can make laws
about and how it shares power with the states. Under the Constitution, the
states kept many of their existing powers. The federal Parliament was given
responsibility for areas that affected the whole nation. Sections 51 and 52 of the
Constitution outline most of the law-making powers of the federal Parliament.
4
THE PARLIAMENTis made up of:
• the Queen (represented by the Governor-General)
• the Senate
• the House of
Representatives.
The Parliament has legislative power, which means it can make and change laws.
THE EXECUTIVE(also known as the executive government) includes:
• the Prime Minister
• ministers.
The Executive puts laws into action and carries out the business of government. The Constitution gives the Queen executive power; in reality, it is the Prime Minister and ministers who perform the work of the executive. However, they regularly inform the Governor-General (the Queen’s representative) about this work.
THE JUDICIARYis made up of all federal courts, including the High Court.
The High Court acts like an umpire. It interprets the Constitution and existing laws. It also resolves disagreements between the federal and state governments about their law-making powers. Since federation, rulings made by the High Court have strengthened the law-making role of the federal Parliament.
Separation of powersThe Constitution established three groups – the Parliament, the Executive
and the Judiciary – and described the roles that they play in governing Australia.
The power to make and manage federal law is divided, or shared, between these three groups. This division
is based on the principle of the ‘separation of powers’. It allows each group to keep a check on the actions of
the others and so prevent the misuse of power.
Australia does not have a complete separation of powers because some of the roles of the Parliament
and the Executive overlap. For example, the Executive is chosen from among government members of
the Parliament, and members of the Judiciary (High Court judges) are appointed by the Governor-General.
Changing the ConstitutionThe Constitution can only be
changed if the Australian people
agree. A proposed change must
be approved by the federal
Parliament. It then has to be put to
the Australian people in a special
vote called a referendum.
For the change to be agreed to, it
must gain a double majority. This
means that the referendum has to
be approved by:
• a majority of voters in a majority
of states (at least four of the
six states)
• a national majority of voters
(more than half the voters in
Australia must vote YES).
Territory voters are counted in the
national majority.
Nineteen referendums proposing
44 changes to the Constitution
have been held since federation.
However, only eight changes
have been agreed to by the
Australian people.
VOTING YES TO CONSTITUTIONAL CHANGE
The Australian people have agreed to eight changes to the Constitution. For example, they agreed to:
• give the federal Parliament power to provide social services such as maternity allowances, widows’ pensions, child endowment, unemployment and sickness benefits (1946)
• give the federal Parliament power to make laws for Aboriginal people and to include all Aboriginal people in the national population count (1967)
• fill casual vacancies in the Senate with a person from the same political party as the senator being replaced (1977).
Nearly 91%
of Australians
voted ‘YES’
in the 1967
referendum
– the largest
ever ‘YES’ vote
GET THIS...When deciding on Australia’s system of government, the colonial leaders looked to other countries. Many features of Australia’s parliamentary democracy mirror those of Britain, while several of the federal elements were inspired by the United States.
Australia became a nation after people voted in referendums
THE AUSTRALIAN CONSTITUTION
Constitution Alteration (Aboriginals) 1967
DIRECTIONS. Mark your vote on this ballot-paper as follows:
If you APPROVE the proposed law, write the word YES in the space provided opposite the question.
If you DO NOT APPROVE the proposed law, write the word NO in the space provided opposite the question.
DO YOU APPROVE the proposed law for the alteration of the Constitution entitled—
“An Act to alter the Constitution so as to omit certain words relating to the People of the Aboriginal Race in any State and so that Aboriginals are to be counted in reckoning the Population”?
5
Three levels of law-makingGoverning AustraliaThere are three levels of
law-making in Australia – often
referred to as the three levels
of government – that work
together to provide Australians
with the services they need.
Representatives are elected to
federal and state/territory
parliaments and local councils
in separate elections.
Different responsibilitiesGenerally, each level of government provides different services to the people of Australia.
The federal government has power over issues that affect the whole nation. These are listed
in section 51 of the Australian Constitution. Among other things, the federal government can
make laws about defence, immigration, trade, foreign affairs, industrial relations, transport,
social security and family support, postal and telephone services and taxation.
State and territory governments make decisions
about areas that are not looked after by the federal
government. For example, they are responsible for
matters such as hospitals, schools, public transport,
police and forests.
Local councils were established by state governments
to look after the needs of a city or local community.
Local government responsibilities include town
planning, pet control, rubbish collection and
recycling, and recreation facilities such as parks and
swimming pools.
There are times when these different responsibilities
overlap. For example, local roads are provided through the cooperation of federal,
state/territory and local governments. Each level of government contributes money
towards building and maintaining roads.
Because of its small geographical size the Australian Capital Territory (ACT) does not have
local councils. The ACT government takes care of territory and local government matters.
GET THIS...Australia has one federal government, six state and two territory governments, and over 560 local councils. This means most Australians are governed by three sets of laws.
GET PARLIAMENT6
The powers of the federal government are listed in section 51 of the Constitution
FEDERAL STATE/TERRITORY LOCAL
Which law?Under section 109 of the
Constitution, if a state Parliament
and the federal Parliament
pass conflicting laws on the
same subject, then the federal
law overrides the state law.
Section 122 of the Constitution
allows the federal Parliament to
override a territory law at any time.
The federal Parliament has only
used its power under section 122
on a few occasions and usually
only when the territory law is
controversial. For example, in
1997 the federal Parliament
passed a law to overturn the
Northern Territory’s Rights of the
Terminally Ill Act which had made
euthanasia legal in the territory.
Parliament House – the federal Parliament meets in Canberra
THREE LEVELS OF LAW-MAKING 7
The FEDERAL GOVERNMENT raises
money to run the country by collecting taxes
on incomes (wages), goods and services and
company profits
and spends it on national matters,
for example: trade, defence, immigration and the environment.
STATE/TERRITORY GOVERNMENTS
also raise money from taxes but receive
more than half their money from the
federal government
and spend it on state/territory matters, for
example: schools, housing and hospitals,
roads and railways, police and ambulance services.
LOCAL COUNCILS collect taxes (rates)
from all local property owners and receive grants from federal and state/territory
governments
and spend this on local matters, for example:
town planning, rubbish collection, water and sewerage, local roads
and pet control.
$$ $$
Who is responsible for what?
Electing members of parliament
BALLOT PAPER
HOUSE OF REPRESENTATIVES
STATEELECTORAL DIVISION OF
DIVISION NAME
OF
FICIAL USE ON
LY
Remember...number every box
to make your vote count.
Number the boxes
from 1 to 8 in the
order of your choice.
SURNAME, Given names
PARTY
SURNAME, Given names
PARTY
SURNAME, Given names
PARTY
SURNAME, Given names
PARTY
SURNAME, Given names
PARTY
SURNAME, Given names
PARTY
SURNAME, Given names
INDEPENDENT
SURNAME, Given names
PARTY
23741568
CIALLLLLLLAA UUSEE
SAMPL E
Representative democracy Australia is a representative democracy which means that Australians elect members of parliament to make laws
and decisions on their behalf. At a federal election, Australians elect members of parliament to represent them in
federal Parliament. All Australians aged 18 years and over must enrol to vote.
The federal Parliament is bicameral which means that it consists of two houses—the Senate and the House
of Representatives. There are 150 members in the House of Representatives. Each member represents an
electorate in Australia. Electorates are based on population—on average, 100 000 voters live in each electorate.
This means that states with larger populations have more electorates and therefore more members in the House.
The Senate has 76 senators. Each Australian
state is represented by 12 senators. The
states were given equal representation in the
Senate so that states with larger populations
did not dominate the Parliament. Since
1975, the Australian Capital Territory and
the Northern Territory have each been
represented by two senators.
Elections
House of Representatives
Elections for the House of Representatives
use a preferential voting system to elect one
member for each electorate. A candidate
must get an absolute majority (more than
50% of the votes) to be elected.
Voters write a number beside the name of
every candidate on the ballot paper: ‘1’ for
their first preference (or choice), ‘2’ for their
second preference and so on.
If a candidate gets an absolute
majority of first preference
votes, that candidate wins. If no
candidate has enough first
preference votes for an absolute
majority, then the candidate with
the fewest votes is excluded
and their votes are transferred
to the remaining candidates,
according to voters’ second
preferences. This process
of excluding candidates and
redistributing votes continues
until one candidate achieves
an absolute majority.
GET PARLIAMENT8
How preferential voting works
To be elected, a candidate must have an absolute
majority of votes (more than 50% of the total votes).
In the example below using 100 votes, the absolute
majority is 51 or more.
ARI LAUREN
LAUREN
39 35 20 61st count
ARI
MARIA
MARIA
MARIA
40 39 21
39 35 201 4 1
6
2nd count
JOE
JOE
JOE
ARI
46 54
40 39 216 15
3rd count
No one has 51 or more votes, so Lauren’s votes
are transferred (distributed) according to second
preferences.
No one has 51 or more votes, so Joe’s votes
are transferred (distributed) according to the
next preferences.
Ari is elected with 54 votes.
When are federal elections held?Under section 28 of the Constitution, members of the House of
Representatives are elected for a maximum term of three years, although
elections may be called earlier.
State senators are elected for a period of six years. The Senate is elected on a
rotating basis, with half the Senate elected every three years. Newly-elected
state senators begin their six-year term on 1 July following an election. When
an election for the House of Representatives is called, a half-senate election is
usually held at the same time.
The six-year term and system of rotation in the Senate means that it has
a continuing membership and reflects the views of Australian voters at
different times. The Senate’s six-year term strengthens its role as a house
of review. It gives senators more time to become expert at examining
important issues, proposed laws and the work of the government.
The terms of territory senators are the same as the members of the
House of Representatives.
GET THIS...Women were given the right to vote in federal elections in 1902, making Australia one of the first countries to give women the vote. In 1962 all Aboriginal Australians were granted the right to vote in federal elections.
ELECTING MEMBERS OF PARLIAMENT
SenateIn Senate elections, Australians are
voting to fill more than one vacancy.
Elections for the Senate use a more
complex voting system known
as proportional representation.
This means senators must get a
‘quota’ (set number) of votes.
The number of votes required is
obtained by dividing the total number
of votes (in each state or territory)
by one more than the number of candidates and
then adding one to the result. Under this system, Independents
and smaller parties have a greater chance of being elected to
the Senate.
Senate ballot papers list all the names of the candidates and the
political parties to which they belong, followed by ungrouped
or individual candidates. Senate ballot papers are divided into two
sections because voters have a choice of voting ‘above-the-line’
or ‘below-the-line’.
• Above-the-line voting means that voters only have to put a number
‘1’ in the box above the party or group they choose. The party or
group has told the Australian Electoral Commission how it wants its
preferences shared out. These preferences are then distributed for
the voter.
• Below-the-line voting requires voters to write a number in the box
beside every name on the ballot-paper; ‘1’ for their first preference,
‘2’ for their second preference and so on, until all the boxes
are numbered.
Calculating the quotaFor electing six state senators
SENATORS REQUIRED: 6TOTAL VOTES: 700 000 (for simplicity)
700 000 ÷ 7 = 100 000100 000 + 1 = 100 001
QUOTA = 100 001
700 0006 + 1
+ 1 = quota
1
Or:
Above the lineBy placing the single figure 1 in one and only one of these squares to indicate the voting ticket you wish to adopt as your vote
Either:
YOU MAY VOTE IN ONE OF TWO WAYS
Below the line By placing the numbers 1 to 17 in the order of your preference
OF
FICIAL USE O
NLY
Senate Ballot PaperStateElection of 6 Senators CIAALLAAA USU E
Ungrouped
E
E
D
or
D
C
or
C
B
or
B
A
or
A
SURNAMEGiven namesINDEPENDENT
SURNAMEGiven namesINDEPENDENT
SURNAMEGiven names
SURNAMEGiven names
PARTY
SURNAMEGiven namesPARTY
SURNAMEGiven namesPARTY
SURNAMEGiven namesPARTY
PARTY
SURNAMEGiven namesPARTY
SURNAMEGiven namesPARTY
SURNAMEGiven namesPARTY
PARTY
SURNAMEGiven namesPARTY
SURNAMEGiven namesPARTY
SURNAMEGiven namesPARTY
SURNAMEGiven namesPARTY
PARTY
SURNAMEGiven namesPARTY
SURNAMEGiven namesPARTY
SURNAMEGiven namesPARTY
PARTYPARTYPARTYPARTY
SAMPLE
9
UngroupedupedEEE
SURNAMS EGiven namesG sNDEPENDENTIN
SURNAMEGiven namesINDEPENDENT
SURNAMAMEEGiven namesn
SURNAMMEGiven namesme
URNAAMMURNA EEEEEven namameessssaameesssRTY
URNAAMMMURNAAMMMEEEEEEven nnameeesssenRTY
RNAAMMEEEen naamammeesssam sTY
SAMPLE
Or:
Above the lineBy placing the single figure 1 in one and only one of these squares to indicate the voting ticket you wish to adopt as your vote
Either:
YOU MAY VOTE IN ONE OF TWO WAYS
Below the line By placing the numbers 1 to 17 in the order of your preference
OF
FICIAL USE O
NLY
Senate Ballot PaperStateElection of 6 Senators
Ungrouped
E
E
D
or
D
C
or
C
B
or
B
A
or
A
SURNAMEGiven namesINDEPENDENT
SURNAMEGiven namesINDEPENDENT
SURNAMEGiven names
SURNAMEGiven names
PARTY
SURNAMEGiven namesPARTY
SURNAMEGiven namesPARTY
SURNAMEGiven namesPARTY
PARTY
SURNAMEGiven namesPARTY
SURNAMEGiven namesPARTY
SURNAMEGiven namesPARTY
PARTY
SURNAMEGiven namesPARTY
SURNAMEGiven namesPARTY
SURNAMEGiven namesPARTY
SURNAMEGiven namesPARTY
PARTY
SURNAMEGiven namesPARTY
SURNAMEGiven namesPARTY
SURNAMEGiven namesPARTY
PARTYPARTYPARTYPARTY
17
10
144
3
71213
152
6
95
161
11
8
SAMPLE
The houses of ParliamentHOUSE OF REPRESENTATIVES
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The Speaker is a member of the House of
Representatives and, among other things,
is responsible for the orderly running
of the chamber.
The President is a senator and, among other
things, is responsible for the orderly running of
the chamber.
The Chairman of Committees, who is also Deputy
President of the Senate, runs the chamber during
committee of the whole. At this time, the Senate
can consider a bill in more detail, including
amendments, or changes, to the bill.
A minister is in charge of a government
department that puts law into action.
GOVERNMENT
Prime Minister
Leader of the Opposition
OPPOSITION
INDEPENDENTS AND MINOR PARTIES
The Speaker
Opposition advisors
Shadow MinistersMinisters
Backbenchers Backbenchers
Government advisors
Serjeant-at-Arms
Hansard
Deputy ClerkClerk
10
SENATE
HOUSES OF PARLIAMENT
Shadow ministers ‘shadow’, or look closely at,
the actions of government ministers.
Backbenchers are members of parliament who
are not ministers or shadow ministers.
The Clerk is the top level non-elected officer
in each chamber. The Clerk and Deputy Clerk
record chamber decisions and advise members
of parliament about chamber rules.
Leader of the Government in the Senate
Leader of the Opposition in
the Senate
GOVERNMENT OPPOSITION
INDEPENDENTS AND MINOR PARTIES
Shadow Ministers
Backbenchers Backbenchers
Ministers
Opposition advisorsGovernment advisors
Usher of the Black Rod
Hansard
Deputy Clerk
Chairman of Committees
Clerk
The President
11
The Serjeant-at-Arms is a non-elected officer who
assists the Speaker to maintain order and helps to
run the chamber.
The Usher of the Black Rod is a non-elected officer
who assists the President to maintain order and
helps to run the chamber.
Government advisors give advice to ministers.
Opposition advisors give advice to shadow ministers.
Parliament at work
The Prime Minister, the Hon Malcolm Turnbull MP
Members of parliament speak on behalf of Australians
GET PARLIAMENT
RepresentationFederal Parliament represents all Australians.
Each member of parliament represents, or speaks up
about, the concerns and views of their constituents
(the people in their electorate or state/territory).
They do this in a number of different ways.
For example, they might argue for or against a
bill (proposed law), or make statements and ask
questions in the Parliament. They present signed
petitions (requests) to the Parliament on behalf
of their constituents. As well, they can speak to
ministers and government departments about
issues affecting their constituents.
Members of parliament also represent Australians
by making decisions on their behalf. Decisions
are made in Parliament by voting on bills and
proposals put forward by ministers and other
members of parliament.
Members of parliament can speak freely on your
behalf in the Parliament because they are protected
by parliamentary privilege. This means that legal
action can’t be taken against them for anything
they say or do in Parliament. Freedom of speech
allows the Parliament to debate and inquire into any
matters in a detailed and open way.
GET THIS...Members of parliament can ‘cross the floor’, which means voting against the decisions of their party. This is rare because of strong party loyalty. In the past, crossing the floor was more common. Senator Reg Wright, who served in Parliament from 1950 until 1978, crossed the floor a record 150 times!
Political partiesMost members of parliament belong to a political
party and are elected to Parliament as a member
of that party. A political party is a group of people
who share similar ideas about what they believe
are the best policies and actions needed to run the
country. Party members will then work together to
gain the support of the public and Parliament for
these policies.
Political parties aim to have enough of their members
elected to Parliament to form government. At present
the majority of members of parliament come from
two major political party groups. Minor parties and
Independents are also represented in the Parliament.
To see the current composition of the Australian
Parliament, go to Parliament NOW:
www.peo.gov.au/learning/parliament-now
12
PARLIAMENT AT WORK
Forming governmentAfter a federal election, the government is formed
by the political party or coalition of parties with the
support of the majority of members in the House
of Representatives.
To stay in power, the government must keep the
support of more than half of the 150 members (that is,
at least 76). The government does not need a majority
in the Senate to form government.
The Prime Minister is a member of parliament and
the leader of the government. The Australian people
do not vote directly for the Prime Minister. Rather, the
Prime Minister is chosen as leader by members of the
government and sits in the House of Representatives.
Some members of the government are selected to be
ministers. Usually, about 20 ministers are members of the
House of Representatives and about 10 are senators.
Executive governmentThe Prime Minister and ministers make up a group
called the ‘ministry’ or the ‘executive government’.
The executive makes decisions about how the country
should be run and administers (carries out) laws made
by the Parliament.
The executive also suggests ideas for new laws and
proposes changes to current laws which it introduces
into the Parliament as bills. Ministers are given an
area of responsibility known as a ‘portfolio’. They are
usually in charge of a government department, which
looks after areas such as foreign affairs or health.
OppositionThe opposition is the largest party (or coalition) that is not
in government. The opposition wants voters to see it as
the alternative government. It sets out ideas and plans for
how it would govern the country and explains why it would
do a better job than the current government.
The opposition must be ready to form government if
it gains the support of the majority of members in the
House of Representatives following a federal election.
CrossbenchThe crossbench is made up of minor parties and
Independents. They play a role in decision-making
and in scrutinising the work of the government. To be
passed by the Parliament, a bill or proposal needs the
support of the majority in each chamber. Crossbench
votes can be important in deciding an issue.
A DAY IN THE LIFE OF A MEMBER OF PARLIAMENT
7am–BREAKFAST MEETING
with schools about junk food in
school canteens
8am–MEET WITH ADVISORS
to review the day’s schedule
9am–PARTY MEETING
to discuss policies and prepare
for Question Time
10am–OFFICE
to read notes and prepare
questions for committee
hearing into cyber crime
10.30am–SPEECH IN CHAMBER
on the government’s bill to ban
junk food in school canteens
11am–COMMITTEE HEARING
into pressures faced by
secondary school students
12pm–WORKING LUNCH
with Year 10 students from
my electorate to hear about
how they juggle study and
part-time work
1PM–MEETING
with media advisor to prepare
for radio interview this afternoon
2pm–QUESTION TIME IN THE
HOUSE
ask the government about its
policy on junk food advertising
3.30pm–MEETING
with a constituent from
my electorate about an
immigration issue
4pm–MEETING
with a lobby group from the
food industry to hear its views
on the junk food bill
4.30pm–COMMITTEE HEARING
question witness groups about
cyber crime
6pm–RADIO INTERVIEW
about banning junk food
advertising on television
6pm–SPEAK AT DINNER
FUNCTION
hosted by the Australian Film
and Television School
8pm–PRESENT PETITION TO
THE HOUSE
on behalf of constituents
calling on the government
to ban junk food advertising
during children’s programs
on television
Parliament sits for about 70 days a year. Members of parliament spend some of the sitting period in the chambers, but have many other demands on their time.
For example, they participate in parliamentary committees (which investigate proposed laws and other issues), assist people from their electorate or state/territory, attend party meetings and keep up-to-date with current issues.
Business is conducted in each chamber for an average of eleven hours a day, four days a week. However, it is not unusual for members of parliament to begin their day with a breakfast meeting at 7am and to end their day at 10pm or later.
Members of parliament work similar hours in their electorate or state/territory when Parliament is not sitting. For example, they meet with community organisations, visit schools, make presentations, attend local party meetings, handle enquiries from their constituents and speak to the media.
Sample diary of an MP – Tuesday 14 March
13
Making lawsOne of the main roles of the Parliament is to consider and make new
laws and change old ones. Laws are rules that help manage our society.
Some laws tell us how to play our part as responsible citizens,
for example laws about voting and taxation. Other laws are made
to look after people, such as laws providing money for health or
education. Laws are often made in response to an issue, such as
tackling cyberbullying.
Introducing billsA proposal for a new law is called a ‘bill’. Most bills are introduced into
the Parliament by the government, although any member of parliament
can propose a bill.
Bills introduced by non-government members of parliament are
known as private members’ or private senators’ bills. Approximately
180 government and 20 private bills are introduced in Parliament each
year. Of these, about 90 per cent become law.
Bills may begin in either the House of Representatives or the Senate,
except for some money and taxation bills which must be introduced in
the House of Representatives. About 90 per cent of bills begin in the
House of Representatives, where most ministers sit.
GET THIS...The Clerk reads the title of the bill aloud when it is introduced, and if it passes the second and third reading stages. This practice dates back to the early days of the British Parliament before printing and literacy were widespread. The Clerk would read not just the title but the entire contents of the bill.
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Passing billsA bill must go through several stages before it
can become a law. After a bill is introduced into
Parliament, members of parliament have the
opportunity to debate and vote on it.
A bill becomes a law if it is passed by both the
House of Representatives and Senate in identical
form (using exactly the same words) and has been
assented to (signed) by the Governor-General.
A bill can only be passed if a majority in each
chamber agrees. The stages a bill goes through in
each chamber are set out in the diagram to the right.
Amending billsAfter examining a bill in detail, the Senate or the
House of Representatives may decide to make
amendments (changes) to a bill to improve it.
These amendments are also debated and voted
on. Any member of parliament can suggest
amendments. If the government does not have a
majority in either chamber, it may have to negotiate
with Independents, minor parties or the opposition
and make amendments to the bill so it will be passed.
Examples of some bills
Debating an issue in the Senate
14
PARLIAMENT AT WORK
• 1st reading—the bill is introduced to
the House of Representatives.
• 2nd reading—members debate and
vote on the main idea of the bill.
• House committee*—public inquiry into
the bill and reporting back to the House.
• Consideration in detail*—members
discuss the bill in detail, including any
changes to the bill.
• 3rd reading—members vote on the bill
in its final form.
• The bill is passed in the House of
Representatives and sent to the Senate.
Usual stages of a bill
HOUSE OF REPRESENTATIVES
SENATE
GOVERNOR-GENERAL
• 1st reading—the bill is introduced to
the Senate.
• 2nd reading—senators debate and
vote on the main idea of the bill.
• Senate committee*—public inquiry into
the bill and reporting back to the Senate.
• Committee of the whole*—senators
discuss the bill in detail, including any
changes to the bill.
• 3rd reading—senators vote on the bill
in its final form.
• The bill is passed in the Senate.
• Royal Assent—The Governor-General
signs the bill.
• Bill becomes an Act of
Parliament—a law for Australia.
* optional stage
1ST READING
1ST READING
2ND READING
2ND READING
3RD READING
3RD READING
Consideration in detail*
Committee of the whole*
House committee*
Senate committee*
Royal Assent by the
Governor-General
BILL BECOMES AN ACT
OF PARLIAMENT
BILL IS PASSED
BILL IS PASSED
15
GET THIS...The media keeps the public informed about Parliament and in particular the performance of the government. The media can play an important part in scrutinising the government by investigating or questioning its decisions and actions.
The Leader of the Opposition in the Senate,
Senator the Hon Penny Wong
GET PARLIAMENT16
AccountabilityIt is the job of the Parliament, and in particular
the opposition, minor parties and Independents,
to scrutinise (closely examine) the work of
the government.
The Parliament holds the government to account
by checking that the government’s decisions are in
the best interests of the nation. There are several
ways the Parliament can make sure the government
explains what it is doing and why.
Parliamentary committeesParliamentary committees are set up by the Senate and the House of
Representatives to investigate bills (proposed laws) or issues in more
detail than is possible in the chamber. This helps the Parliament make
better informed decisions.
Most members of parliament, except ministers and parliamentary
secretaries, serve on committees. A parliamentary committee is usually
made up of six to ten government and non-government members
of parliament.
The committee invites the public, experts and officials to make a written
statement outlining their views about the bill or issue. It then might
ask some of these people to appear before it to answer questions and
provide further information. Next, the committee writes a formal report
which is presented to the Parliament. The report may suggest changes
to a bill or make other recommendations.
Committees also check on the work of the government
to make sure that it is doing its job properly. For example,
Senate estimates hearings, also known as ‘estimates’,
allow senators to scrutinise how the government is
spending taxpayers’ money. They also focus on the
government’s future spending plans.
Under detailed questioning from non-government
senators, ministers and department officials may
reveal details about government practice that have
previously not been made public. Estimates hearings
may lead to improvements in the way government
departments are run. As well, they remind the
government that it is accountable to Australians for
its policies and actions.
All estimates, and most committee hearings, are
open to the media and the public and are
broadcast live.
A minister and senior public servants face questioning at a
Senate estimates hearing
Hansard reporters in the House
of Representatives
A member of parliament questions the government
PARLIAMENT AT WORK
Question TimeDuring Question Time, the Prime Minister and ministers are asked to explain government
decisions and actions. Question Time takes place in both the House of Representatives and
Senate at 2pm every Monday to Thursday when Parliament is sitting, and runs for about
one hour.
The opposition, minor parties and Independents use Question Time to raise important issues,
and to make sure that the decisions made by the government are in the best interests of
the nation. The opposition may also ask questions aimed at highlighting weaknesses in the
government’s performance and at presenting itself as an alternative government.
In contrast, members of the government ask ministers questions that give them a chance to
show that the government is doing a good job of running the country. Question Time also allows
ministers to talk about urgent matters and to display their political skills.
Question Time is often the liveliest part of the sitting day. It is broadcast on national television,
radio and the internet and is widely reported in the media. This gives the public an opportunity to
observe Parliament at work.
17
Public recordsOfficial records are kept of what is said and done in the Parliament. These records include
Hansard, Journals of the Senate and Votes and Proceedings. Anyone can check these records
to see what is being said about a bill or issue, and to find out about decisions made by the
Parliament. These records are an important way of keeping Parliament open and accountable
to the people.
Hansard is an edited transcript (written record) of what is said in Parliament. It is named after the
family who produced the record of British parliamentary debates from 1812 to 1889. Hansards
for the Senate and House of Representatives are available on the internet on the morning
following each sitting day. Hansards of committee hearings can also be accessed online.
The Journals of the Senate and Votes and Proceedings are legal records and provide the most
accurate information about the activities of the Senate and House of Representatives. Unlike
Hansard, they record what is done by each chamber rather than what is said by individual
members of parliament. For example, they list each vote that is held and how each member of
parliament voted.
The Journals of the Senate can be viewed online at: www.aph.gov.au/Senate/journals
Votes and Proceedings are available to view online at: www.tinyurl.com/VotesProceedings
www.aph.gov.au/About_Parliament/Publications
Get involved
There are ways you can get involved
in Parliament’s decision-making
Taking Parliament to the people: a Senate committee hearing at Balgo in the Kimberley,
Western Australia
Bondi polling place – every vote counts
GET PARLIAMENT
Parliament and youThe laws made in Parliament affect Australians every day.
For example, Parliament has made laws about:
• wearing seatbelts and bike helmets
• how much it costs to post a letter
• classifying films and TV shows
• listing ingredients on packaged food.
VotingAll Australians 18 years and over have the right to vote. You can enrol
to vote once you turn 16 so you are ready to have your say. By voting,
you choose who you want to be represented by in Parliament.
With the right to vote comes the responsibility to make an informed
decision. You can do that by:
• learning about our parliamentary system
• finding out about candidates and what they stand for
• deciding if you agree with your representatives.
Committees and youIf a committee investigates an issue you feel strongly about you can
let them know what you think. Anyone who takes part in a committee
is considered to be protected by parliamentary privilege. This means
they can speak freely without any action being taken against them.
Public input into committees is important. It is one way Parliament can
learn about community attitudes and concerns, and work towards
fixing problems.
Committees invite people to send
them a written submission
(statement) or to attend a public
hearing (meeting) to outline their
views. For example, high school
students sent submissions to a
committee investigating the
pressures of juggling school and
casual work. The committee then
invited the students to a public
hearing to discuss their
experiences. Committee hearings
are held in towns and cities across
Australia, as well as at Parliament
House in Canberra.
18
How else can I get involved?• Participate in online
discussions and blogs on current issues.
• Join a youth parliament in your state or territory.
• Visit Parliament House and see the House of Representatives and the Senate in action.
• Organise and speak at a public meeting.
• Speak or write to a member of parliament about an issue.
• Write letters to newspapers or call talk-back radio.
• Watch Parliament on television, or via the internet at www.aph.gov.au
PetitionsA petition is a request by a group of citizens for Parliament to take action to
solve a particular problem. It is the oldest and most direct way that citizens
can draw attention to a problem and ask the Parliament to help them.
The public can influence decisions made in Parliament by starting or
signing a petition. Members of parliament present petitions on behalf of the
public. Each chamber has rules about how a petition can be presented.
The Yirrkala petition, written in English and Yolgnu languages, and decorated with
Aboriginal bark paintings
Petition presented in the Senate
to stop tariff cuts
GET INVOLVED 19
One of the most famous set of
petitions was presented to the House
of Representatives in 1963 on behalf
of the Yolgnu people of Yirrkala in the
Northern Territory. The Yolgnu people
asked the Parliament to recognise
their traditional land on the Gove
Peninsula in Arnhem Land, which
was under threat from mining. As a
result, the Parliament established a
committee to investigate the issue.
Some unusual petitions have been
presented to the Senate, including
one that was written on a jacket and
continued on a roll of cloth.
This petition related to the textile,
clothing and footwear industries
and was presented on 2 April 1992.
GET THIS...Every year over one hundred petitions are presented to Parliament. One of the petitions with the greatest number of signatures – 792 985 – called on the government not to increase taxes on beer. It was presented to the House in 2000.
Get more!
GET PARLIAMENT20
Get ParliamentOrder additional copies
of Get Parliament
or view online.
Get Parliament Activity SheetsYou can download
activity sheets to use
with this booklet.
www.peo.gov.au/
resources/
get-parliament.html
Parliamentary Education Office (PEO) Online resources – www.peo.gov.au
Parliament NOWUp-to-date information about the current Parliament, including who’s who,
latest news and statistics.
www.peo.gov.au/learning/parliament-now
Fact SheetsThe Fact Sheets give more information on topics covered in Get Parliament.
www.peo.gov.au/learning/fact-sheets
Closer LookCloser Look provides a detailed exploration of several themes in Get Parliament,
such as federation and the three levels of law-making.
www.peo.gov.au/learning/closer-look
Federal Parliament History TimelineInvestigate the milestones to find out how the work of the Parliament
has influenced the development of Australia since federation.
timeline.peo.gov.au
MultimediaCheck out the PEO’s videos, images, games and quizzes.
www.peo.gov.au/multimedia
Your Questions on NoticeGot a question about the Australian Parliament? The Parliamentary Education
Office will help you find the answer.
questions.peo.gov.au
Online resources just for teachers – www.peo.gov.au/teaching
Units of WorkThese units cover aspects of the Australian Civics and Citizenship Curriculum
that deal with key concepts relating to Australia’s federal Parliament. They
include lessons, assessment and marking rubrics.
Role-play Lesson PlansTransform your classroom into a parliamentary chamber with
role-plays that explore the processes of law-making, representation and scrutiny
in the Parliament.
Mini Role-play Lesson PlansExplore some of the different ways that members of parliament represent the
people and hold the government to account. These mini role-plays provide a
quick introduction to the day to day work of the Parliament.
Parliamentary Lesson PlansDesigned for middle to upper secondary teachers, the Parliamentary Lesson
Plans investigate Parliament through interactive and student-focused activities.
The series includes 12 lessons across six themes: Political Movements,
Representation, Transparency, Executive Government, Legislation and
The Constitution.
Acknowledgments
Page 2:
Barriers between Brothers, cartoon courtesy of the National Library of Australia.
Page 3:
Combine Australia cartoon, photo by Dragi Markovic courtesy of the National Museum of Australia.Federation celebrations, photos courtesy of the National Library of Australia.
Page 4: Commonwealth of Australia Constitution Act, 1900: Original Public Record Copy (1900), courtesy of the Parliament House Art Collection, Art Services Parliament House.
Page 5: “The West Australian” Record Board, Federal Poll 1900, photo courtesy of the State Library, Western Australia.Referendum ballot paper 1967, courtesy of the National Archives of Australia.
Page 8–9: Ballot papers, courtesy of the Australian Electoral Commission.
Page 18: Senate committee in WA, photo courtesy of the Senate Research section.Bondi polling place, photo courtesy of the Australian Electoral Commission.
Page 19: Yirrkala artists, Dhuwa moiety, Yirrkala Bark Petition 14.8.1963, 46.9 x 21cm, natural ochres on bark, ink on paper, House of Representatives, Canberra.Yirrkala artists, Yirritja moiety, Yirrkala Bark Petition 28.8.1963, 46.9 x 21cm, natural ochres on bark, ink on paper, House of Representatives, Canberra.Petition presented in the Senate to stop tariff cuts, courtesy of the Department of the Senate
All other images courtesy of AUSPIC/DPS and the PEO.
Other resourcesVisit www.peo.gov.au/resources to see the full range available, including:
Parliament in PicturesA set of ten A2 posters and a classroom guide which introduces teachers and
students to the federal Parliament. $20.00 per individual set (includes postage
and GST).
Parliament of WizardsA set of innovative teaching materials on CD-ROM. Students take on the role of
wizards and create an imaginary parliament. One complimentary copy available
per school.
Pocket ConstitutionA pocket-sized edition of Australia’s Constitution.
$2.00 per copy (includes postage and GST).
Role-play the Parliament: a teacher’s guideA colourful resource designed for teachers who want to run a parliamentary
role-play in the classroom. One complimentary copy available per school.
Role-play at Parliament HouseThis one hour program is available to primary, secondary and tertiary students
and accompanying teachers. To book please contact the office of the
Serjeant-at-Arms at Parliament House—free call 1800 646 337.
More linksParliament of Australia – www.aph.gov.au
Australian Electoral Commission – www.aec.gov.au
www.peo.gov.au/resources
GET MORE 21
Get Parliament is produced by the Parliamentary
Education Office (PEO). This material has been
developed for use by upper primary and secondary
teachers and students.
For more information about Parliament, visit the
PEO website www.peo.gov.au and the Parliament
of Australia website www.aph.gov.au
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